1.2.

TASKS, PURPOSES, USE OF FORCE

Stability operations implies various missions, tasks, and
activities conducted in a multinational framework, sometimes in
coordination with instruments from host nation powers to maintain or
reestablish a safe and secure environment, provide essential
governmental services, emergency infrastructure reconstruction, and
humanitarian relief.
Stability operations (SO) can be conducted in support of a hostnation or interim government or as part of an occupation when no
government exists. SO involve both coercive and constructive military
actions. They help to establish a safe and
secure environment (SASE) and facilitate reconciliation among local
or regional adversaries. SO can also help establish political, legal,
social, and economic institutions and support the transition to
legitimate local governance. SO must maintain the initiative by
pursing objectives that resolve the causes of instability and they will
never succeed if only react to enemy initiatives.
Coordination, integration, and synchronization between host-nation
elements, other government agencies, and Army
forces are enhanced by transparency and credibility. The degree to
which the host-nation cooperates is fundamental. Commanders
sometimes should publicize their mandate and intentions. Within the
limits of operations security, they make the populace aware of the
techniques used to provide security and control. Actions on the ground
reinforced by a clear and consistent message produce transparency
that in fact, reinforces credibility. Credibility reflects the populaces
assessment of weather the force can accomplish the mission. Army
forces require the structure, resources, and rules of engagement
appropriate to accomplishing the mission and discharging their duties
swiftly and firmly. They must leave no doubt as to their capability and
intentions.
Civil affairs activities in the same context enhance the relationship
between military forces and civil authorities in areas with military
forces. They involve applying civil affairs specialty skills to areas
normally under the responsibility of civil government. These
operations involve establishing, maintaining, influencing, or

exploiting relations between military forces and all levels of hostnation government agencies. These activities are fundamental to
executing stability tasks. Civil affairs personnel, all the international
forces, other government agencies, or a combination of all three
perform these tasks based on detailed civil considerations assessments
regarding information about infrastructure, civilian institutions, and
the attitude and activities of civilian leaders, populations, and
organizations. These assessments may reveal that a viable host- nation
government does not exist or is incapable of performing its functions.
In such cases, Army forces may support or exercise governmental
authority until a host-nation civil authority is established.
TASKS
The combination of tasks conducted during stability operations
depends on the situation. In some operations, thehost nation can meet
most or all of the populations requirements. In those cases, Army
forces work with andthrough host-nation authorities. Commanders use
civil affairs activities to mitigate how the military presence affects
thepopulace and vice versa. Conversely, Army forces operating in a
failed state may need to support the well-being of the local populace.
That situation requires the military forces to work with civilian
agencies to restore basic capabilities. Again, civil affairs activities are
important in establishing the trust between military forces and civilian
organizations required for effective, working relationships. SO may be
necessary to develop host-nation capabilities for security and control
of security forces, a viable market economy, the rule of law, and an
effective government. Army forces develop these capabilities by
working with the host-nation and the goal is a stable civil situation
sustainable by host-nationassets without Army forces. Security, the
health of the local economy, and the capability of the self-government
are related. Without security, the local economy falters. A functioning
economy provides employment and reduces the dependence of the
population on the military for necessities. Security and economic
stability precede an effective and stable government. SOs require the
absence of major threats to friendly forces and the populace. As
offensive operations clear areas of hostile forces, part of the force

secures critical infrastructure and populated areas. Establishing civil

security and essential services are implied tasks for commanders
during any combat operation. Commanders should act to minimize
and relieve civilian suffering. However, if a unit is decisively engaged
incombat operations, it should not be diverted from its mission to
perform stability tasks.
Commanders plan to minimize the effects of combat on the
populace. They promptly inform their higher headquarters of civilian
requirements and conditions that require attention. As civil security is
established, the force returns territory to civil authorities control when
feasible. Transitions to civil authority require coordinating and
integrating civilian and military efforts. Unified action is crucial.
Properly focused, effectively executed stability tasks prevent
population centers from degenerating into civil unrest and becoming
recruiting areas for opposition movements or insurgencies.
CIVIL SECURITY
Civil security involves protecting the populace from internal and
external threats. Ideally, military forces defeat external threats posed
by enemy forces that can attack population centers. Simultaneously,
they assist host-nation police and security elements as the host-nation
maintains internal security against terrorists, criminals, and small,
hostile groups. In some situations, no adequate host-nation capability
for civil security exists. Then, Army forces provide most civil security
while developing host-nation capabilities. For the other stability tasks
to be effective, civil security is required. As soon the host-nation
security forces can safely perform this task, Army forces transition
civil security responsibilities to them.
CIVIL CONTROL
Civil control regulates selected behavior and activities of
individuals and groups. This control reduces risk to individuals or
groups and promotes security. Civil control channels the populaces
activities to allow provision of security and essential services while
coexisting with a military force conducting operations. A curfew is an
example of civil control.
RESTORE ESSENTIAL SERVICES
Army forces establish or restore the most basic services and protect

them until a civil authority or the host-nation can provide them.

Normally, Army forces support civilian and host- nation agencies.
When the host-nation cannot perform its role, Army forces may
provide the basics directly. Essential services include the following:
providing emergency medical care and rescue;
preventing epidemic disease;
providing food and water;
providing emergency shelter;
providing basic sanitation (sewage and garbage disposal).
SUPPORT TO GOVERNANCE
Stability operations establish conditions that enable actions by
civilian and host-nation agencies to succeed. By establishing security
and control, stability operations provide a foundation for transitioning
authority to civilian agencies and eventually to the host nation. Once
this transition is complete, commanders focus of transferring control
to a legitimate civil authority according to the desired end state.
Support to governance includes the following:
developing and supporting host-nation control of public
activities, the rule of law, and civil administration;
maintaining security, control, and essential services through hostnation agencies. This includes training and equipping host-nation
security forces and police;
supporting host-nation efforts to normalize the succession of
power (elections and appointment of officials). SUPPORT TO
ECONOMIC AND INFRASTRUCTURE DEVELOPMENT
Support to economic and infrastructure development helps a host
nation develop capability and capacity in these areas. It may involve
direct and indirect military assistance to local, regional, and national
entities.
PURPOSES OF SOs
Although Army forces focus on achieving the military and state,
they ultimately need to create conditions where the other instruments
of national power are preeminent. SOs focus on creating those
conditions. The main purposes are as follows:
1. Provide a Secure Environment
A key stability task is providing a safe, secure environment. This

involves isolating enemy fighters from the local populace and

protecting the population. By providing security and helping hostnation authorities control civilians, Army forces begin the process of
separating the enemy from the general population. Information
engagement complements physical isolation by persuading the
populace to support an acceptable, legitimate host-nation government.
This isolates the enemy politically and economically.
2. Secure Land Areas
Effective stability operations, together with host-nation
capabilities, help secure land areas. Areas of population unrest often
divert forces that may be urgently needed elsewhere. In contrast,
stable areas may support bases and infrastructure for friendly forces,
allowing commitment of forces elsewhere.
3. Meet the Critical Needs of the Populace
Often, stability operations are required to meet the critical needs of
the populace. Army forces can provide essential
services until the host-nation government or other agencies can do so.
4. Gain Support for Host-Nation Government
Successful SOs ultimately depends on the legitimacy of the hostnation government, its acceptance by the populace as the governing
body. All SOs are conducted with that aim.
5. Shape the Environment for Interagency andHost-Nation Success
SOs also shape the environment for interagency and host- nation
success. They do this by providing the security and
control necessary for host-nation and interagency elements to
function, and supporting them in other key functions.
POST-CONFLICT SUPPORT
When the host-nation cannot provide basic government functions,
Army forces may be required to do so directly by:
Providing security. Army forces conduct operations to establish
and maintain a SASE, whenever possible together with host-nation
forces. They provide public order and safety and protect individuals,
infrastructure, and institutions. Typically, offensive, defensive, and
stability tasks all support this sector. Civil security and civil control
are associated stability tasks. Initially, Army forces have the lead for
this sector. Army operations should complement and be concurrent

with other agencies actions. Army forces hand over responsibility to

host- nation agencies and assume a supporting role as these agencies
develop the needed capabilities. The first aim in the security sector is
to limit adversaries influence and isolate the populace from the
enemy. If the enemy poses a significant military threat, forces engaged
in stability operations defend themselves and the populace from
attacks. Army forces may conduct even offensive operations to
physically isolate, defeat, or destroy forces that threaten the stability
mission. Security is the foremost condition; it underpins all other
sectors.
Justice and reconciliation. Establishing public order and safety
and providing for social reconciliation are this sectors objectives. The
host nation aims to establish self-sustaining public law and order that
operates according to internationally recognized standards and
respects human rights and freedoms.
Humanitarian Assistance and Social well-being. Army forces also
work to reduce human suffering, disease, and
privation. This sector includes programs conducted to relieve or
reduce the results of conditions that present a serious threat to life or
that can result in great damage to or loss of property. These conditions
may be endemic or result from natural or man-made disasters.
Governance and Participation. This sector is concerned with
restoring or creating effective government institutions. These efforts
involve strengthening host-nation governance and rebuilding
government infrastructure. They also require developing institutions
that achieve sustainable peace and
security, foster a sense of confidence, and support conditions for
economic reconstruction. The main goal for Army forces is creating a
proper environment for stable governance. Civilian agencies are
responsible for areas such as the following:
reestablishing the administrative framework; supporting development
of a national constitution; supporting political reform; reforming or
establishing fair taxation.
Economic Stabilization and Infrastructure. Infrastructure
restoration begins with meeting the basic needs of the populace. It
continues by restoring economic production and distribution and also
the basic needs of the populace are met by reconstituting the

following: power; transportation; communications; health and

sanitation; firefighting; environmental control. Once the basic
infrastructure is functioning, efforts shift to stabilizing the economy.
Economic stabilization consists of the following: restoring
employment opportunities; initiating market reform; mobilizing
domestic and foreign investment; supervising monetary reform and
rebuilding public structures.
USE OF FORCE IN STABILITY OPERATIONS
When using force, precision is as important in stability missions as
applying massed, overwhelming force is in offensive and defensive
operations. Commanders at every level emphasize that in stability
operations, violence not precisely applied is counterproductive. Speed,
surprise, and shock are vital considerations in lethal actions;
perseverance, legitimacy, and restraint are vital considerations in
stability and civil support operations.
The presence of armed Soldiers operating among the local populace
causes tension. Discipline and strict adherence to the rules of
engagement are essential but not sufficient to reassure the population.
In addressing the populaces apprehension, commanders balance
protecting the force, defeating enemy forces, and taking constructive
action throughout the area of operations. They also stress cultural
awareness in training and preparing for operations. Cultural awareness
makes Soldiers more effective when operating in a foreign population
and allows them to leverage local culture to enhance the
effectiveness of their operations.
In peace operations, commanders emphasize impartiality in the use
of force in addition to credibility and transparency. Impartiality is not
neutrality which means, does not imply that Army forces treat all sides
equally. Force is used against threats in accordance with the rules of
engagement. Fair treatment of the local populace improves the
prospects for lasting peace, stability, and security.
CONCLUSIONS
Within the concept of operations, the proportion and role of
offensive, defensive, and stability or civil support tasks varies based
on several factors. Changes in the nature of the operation, he tactics
used, and the place the environment falls on the spectrum of conflict

affect the mix and focus. Some combinations may be sequential, such
as a mobile defensefollowed by a counteroffensive, but many occur
simultaneously. During major combat operations, a division may be
attacking in one area, defending in another, and focusing on stability
tasks in a third. Offensive and defensive operations may be
complemented with stability tasks and vice versa at any point of a
campaign. Simultaneous combinations are also present in operational
themes dominated by stability. A peace operation, for instance, may
include a mix of several elements. One force may be conducting a raid
against hostile forces (offence), while a second is securing an
important airport (defense), and a third is providing sanitary and
secure facilities to dislocated civilians (stability). In homeland
security, civil support is often the only element executed, although
there may be some planning for defense.